M AY 2 0 0 3 D E S O E D U C AT I O N D I V I S I O N New Education Division Documents No. 13 Post-basic Education in Partner Countries
NEW EDUCATION DIVISION DOCUMENTS NO. 13 Christine McNab Post-basic Education in Partner Countries Review of Sida support to post-basic education in the partner countries A review commissioned by Sida s Methods Development Unit 1
Published by Sida 2003 Department for Democracy and Social Development, Education Division Author: Christine McNab, August 2002 Cover photo: Sigrid Halvarsson Printed by Elanders Novum AB, 2003 Art no: SIDA2154en ISSN: 0283-0566 2
Foreword This paper was commissioned as a contribution to Sida s policy work in the field of education. The background was that little support has been given to post-basic education during the 1990s. Strategic issues relating to post-basic education have, as a result, been almost dormant within Sida, as has indeed been the case in many other agencies during this period. In contrast, a lot of attention has been given to basic education and to higher education and research. In trying to fill this gap, the paper places the traditional discourse on skill training after primary education in a broader social and economic context. It argues that the challenge ahead for Sida is what can be done to improve a very difficult life situation for young people. Stockholm in May 2003 Ewa Werner-Dahlin Head of Education Division 3
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Table of Contents Executive Summary... 7 The Context of the Review... 17 1. The objectives of the review... 20 1.1 Description of the problem... 20 1.2 The objectives of the review... 21 1.3 The structure of the paper... 22 2. Definitions... 23 2.1 Basic education... 23 2.2 Post-basic education... 23 2.3 The target group Young people... 24 3. Sida policies for support to education and training... 25 3.1 Education... 25 3.2 Higher education and research... 26 3.3 Capacity Building... 27 3.4 Other sector policies... 27 4. Post-basic education in the partner countries... 29 4.1 The education and training needs of young people... 29 4.2 The provision of post-basic education... 31 4.3 Partner country priorities... 33 5. Sida support to post-basic education programmes... 36 5.1 Secondary education... 36 5.2 Higher education and research... 36 5.3 Vocational education and training... 37 5.4 Adult education/non-formal education... 38 5.5 Capacity development within other sectoral programmes... 38 5.6 Cooperation with other agencies... 40 6. The international debate on post-basic education... 43 7. Conclusions... 49 8. Proposals for strengthening Sida support to post-basic education... 51 Annex I... 54 Bibliography... 56 5
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Executive Summary The Context of the Study 1. Swedish development cooperation is being reviewed by a Swedish Parliamentary Committee whilst Sida s strategy for poverty reduction is undergoing an internal review process. The Committee proposes that a human rights perspective should permeate Sweden s development cooperation, arguing that human rights encompass most components of poverty in a broad sense of the word: lack of opportunities, power and security. 2. The rights of children to education are enshrined in the Convention on the Rights of the Child, which came into force in 1990. Although all of Sweden s partner countries have ratified the Convention, few have the resources to provide quality universal education for children. 3. Education systems in the partner countries, especially in Africa, are being undermined by the HIV/AIDS pandemic and the pandemic impacts on young people in many ways. With little education, young people are less able to protect themselves from infection, there being an emerging correlation especially between secondary education and lower infection rates among young people. 4. The review recognises that in most of the partner countries access to both education and the labour market is gender differentiated. The Objective of the Review 5. The objective of the review is to develop a Sida position on support to post-basic education that is coordinated and coherent across the sectors and takes into account the needs of young people as well as societal needs. The review looks at the learning and training needs of young people from a human rights perspective and at the societal needs for an educated labour force. The review also puts the Sida support into an international development cooperation perspective. Definitions 6. Sida has been flexible in defining the different levels of education. Basic education is as defined in the country concerned: it can encom- 7
pass primary education only or primary education plus part or all of secondary education as well as non-formal basic education programmes. Sida s Education Policy emphasises support within the context of Sector Wide Approaches (SWAps). 7. In this review the term post-basic education is used to refer to education and skills training programmes for people who have completed basic education (however defined) or who need to complement inadequate basic education. The Target Group Young people 8. The term young people is used to refer to adolescents and young adults. Young people as a group are growing in absolute numbers and as a proportion of the population in Sida partner countries. The review is confined to the needs of young people because of their importance in terms of numbers, the exclusion of many from education and decent work, their vulnerability socially and healthwise, and the resulting critical situation they are in as they take on new roles as young adults. This marks them out from older adults already established in family and work roles. 9. There is gender differentiation in education and work. Fewer girls than boys complete the primary cycle. Through secondary and tertiary education, percentage enrolments of girls and women decline steadily. Fewer young women than young men are enrolled in skills training programmes. Consequently, women are in a weaker position than men in seeking work. Sida policies for support to education and training 10. There have been two strands to Sida education support: general education and vocational/technical education. In more recent years, Sida support has been concentrated to general basic education including support to non-formal education and to adult education. Sida has traditionally given little support to secondary education. 11. The Education Division has the main responsibility within Sida for education support and the Sida Research Department, SAREC, supports research programmes which include capacity building and institution building in the partner universities. A number of Swedish NGO s receiving block grants from Sida have large education programmes. Education assistance has also been incorporated into Humanitarian Assistance. Other Sector Divisions support capacity building within their own programmes in line with the Sida policy for Capacity Develop. However, sector-based capacity building support usually reaches formal sector workers who already have a secondary school education. Post-basic education in the partner countries 12. The situation of young people is described in some Sida country strategies. The general picture is of young people facing problems 8
such as exclusion from education, lack of employment opportunities, hazardous working conditions, child labour and abuse of their human rights. They are vulnerable to HIV infection. Teenage girls are vulnerable to infection from older men and in some countries have much higher infection rates than boys. 13. Provision of post-basic education in the partner countries is often inadequate. Sida partner countries Tanzania, Mozambique, Ethiopia, Uganda, Eritrea, Kenya, Zambia and Cambodia have less than 40 percent gross enrolment rations (GER2) in secondary schools. A factor that distinguishes countries with exceptionally low GER2 is population growth rates averaging nearly 2,9%. Another factor is the 0 14 year old dependency rate which is very high at over 80% in low GER2 countries. 14. Vocational and technical education has been highly dependent on external financing and is thereby vulnerable to changing international orthodoxy s on its relevance and costs. By the late 1980s, the relevance of the skills taught and the cost-effectiveness of state-run colleges were brought into question by the World Bank. During the 1990 s external support shrank with only a few major external financiers remaining in the sub-sector. This led to a move from staterun colleges to a mix of private and state financing of formal and non-formal skills training programmes. 15. Non-formal general education is an important way back into education for young people with inadequate basic education. Programmes are run by governments and both local and international organisations, often with external financing from agencies such as Sida. Partner Country Priorities 16. Partner country priorities are increasingly set out in Poverty Reduction Strategy Papers. In general there is a focus on basic education with the intention to give higher priority to secondary education in a second phase. In the PRSPs there is some concern over employment issues and the need for a skilled work force. Such concerns could lead in the future to higher priority being given to education at post-basic level, particularly in skills training. Education sector support is often planned as a sector wide programme (SWAps) but so far there are no SWAps in which Sida financing is spread across all levels and types of education. Sida support to post-basic education programmes 17. Although secondary education is not a traditional Sida focus, it is likely that Sida funding will be used in the future even for this level and type of education within education SWAps. 18. In Swedish development cooperation, special attention is given to research universities that have a central role in the development of a basis for research, as well as for the production of qualified manpower, including teachers. During the 1990s, a shift occurred in SAREC s bilateral programmes towards supporting research projects 9
as part of comprehensive support for institutions. Such university support is directed to the main universities of Burkina-Faso, Eritrea, Ethiopia, Mozambique, Tanzania, Uganda, Bolivia and Nicaragua. Preparations of similar support to the main universities of Laos and Honduras are on going. Sida contributes as well to local Master programmes in Ethiopia, Mozambique, Tanzania, Sri Lanka and Vietnam. In Sri Lanka and Vietnam, major funds are directed at strengthening university research. 19. Support to vocational training during the 1970 s and 1980 s was mainly to colleges run on a technical assistance model by expatriates. Criticism of this model became overt in the late 1980 s in the Nordic Report on Technical Assistance that found the TA model both expensive and ineffective. Sida support to vocational and technical education declined throughout the 1990s, from 13% of the education total in 1992/93 to 2 percent in 2000. 20. SIDA support to vocational education and training was also channelled to skills-training programmes with UNESCO as the implementing agency. Evaluations showed that at the level of outcomes the results were good, but the sustainability and replicability of the programmes were failures. Sida support was phased out. 21. During the 1970 s, significant support was given by SIDA to the ILO World Employment Program. A major activity was the development of modules on employable skills. Other activities included a series of country studies on employment in developing countries. The Kenyan study highlighted the role of the informal sector in providing employment. This raised questions about the relevance of vocational schools for young people without formal employment. 22. Sweden has a strong tradition of diversified adult education programmes and this is reflected in the Sida support to literacy campaigns, post-literacy classes and various adult education programmes including skills training. Non-formal education as a substitute for school education has been developed in a number of countries. In 2001, adult and literacy education received about 15 percent of the total Sida disbursements to education. 23. Sida supports capacity development in the context of other (noneducation) sector programmes. In 1996, such Sida inputs were mapped out in a consultancy study. The majority of programmes are in-service skills training and management training for the public and private sectors 24. Another arena for support to the education and training of young people is humanitarian assistance. Sida s Division for Humanitarian Assistance emphasises a long-term approach to humanitarian assistance and between six and eight percent of the budget is used for education. This is mainly for primary education. 25. In 2001, over 17 percent of the Sida allocation to Swedish NGOs engaged in development cooperation was spent on education projects. In November 2000 Sida s Education Division published the results of a survey of NGOs concerning their education pro- 10
grammes: the funds were allocated almost equally between formal and non-formal education programmes. It is not possible to see from the survey results how much was used for post-basic education for young people. Cooperation with other agencies 26. Sweden has formal cooperation agreements and gives budget support to a number of UN agencies, including the United Nations Development Programme (UNDP), the United Nations Children s Fund (UNICEF), the United Nations Population Fund (UNFPA) and the International Labour Organisation, ILO. 27. UNICEF s mandate focuses on survival, child development, protection and participation. Expenditures show that the main UNICEF priority is health. There is little emphasis in the UNICEF programme on the education and training needs of older children. 28. A central role for the ILO is to promote the right to decent work and ILO has built an alliance with the World Bank and the UN for the promotion of employment for young people. A particular target is young people working in the informal economy. There is a new UNDP/ILO programme, Jobs for Africa, which includes training and informal sector employment. The programme is being piloted in ten countries including Burkina Faso, Ethiopia, Uganda, Zambia and Zimbabwe. 29. UNFPA is one of the few organisations that recognises young people s needs, especially in relation to sexual and reproductive health. With HIV/AIDS a major threat to young people, access to information is a major education issue. 30. Sida has a long tradition of cooperation with the World Bank on education policy and support to basic education programmes, for example in Bangladesh and Bolivia. There has so far been little direct cooperation at post basic level but this might well be developed within the context of sector wide approaches. 31. Sida works with both multilateral and bilateral agencies on policy issues, for example within the framework of the Association for the Development of African Education. It is noteworthy that ADEA does not have any formal working groups for Secondary Education or for Vocational and Technical Education. The International Institute for Educational Planning is a long-term Sida partner. Close cooperation with other bilateral agencies has mainly been with other Nordic partners and the Netherlands, mainly at basic education level. The international debate on post-basic education 32. The international debate on access and quality of education in the developing countries is a part of the wider global debate on poverty reduction. It is a debate among many actors countries, agencies, non-governmental organisations and the private sector on quality of labour in a globalised economy, ICT, human rights and democratic development as well as on how best to finance education and skills training programmes. 11
33. In the debate specifically about education and training, funding basic education for all is agreed to be the top priority as basic skills are a foundation for all further learning and skills development. However, increased enrolment in secondary education and qualitative improvements of the whole system are usually high on the list of second level priorities. 34. The problem of making education relevant to the world of work was the theme of an international conference in September 2001: Linking Work, Skills and Knowledge. In a report on the conference it is noted that globally: service work is growing at the expense of production; globalisation brings rapid changes in technology and competitive environments which promotes lifelong learning; traditional and industrial artisan skills are declining relative to information and communications skills; and there is more concern with generic skills and a shift towards thinking in terms of competencies. It is not clear how if these statements are equally applicable to the least developed countries. Many of the skills are supposed to be, but are not, delivered within formal schooling. 35. It is argued that there is a need to focus on the respective roles of states and markets in skills development, and to focus strongly on the needs of those traditionally excluded from training. The emergence of more knowledge intensive work highlights the need to link education and training better. 36. The World Bank Africa Department is currently engaged in a major desk study of its skills-related activities in Africa in the 1990 s and the implications for its future policy. A key issue emerging from the study is how to get the private sector to provide better quality training and how to fund the training: the failure of cost sharing in several projects suggest that the Bank needs to rethink the funding issue when it comes to poorer clients. 37. There is a DFID-funded research project on education, training and enterprise in Africa (WG-ICSD, 2001) centred on the challenges posed by globalisation. The principal findings include that it is crucial to enhance individual, societal and enterprise learning if Africa is to respond to globalisation in a way that benefits the mass of its population. Progress among Africa s micro and informal economies remains fragile in the face of broader economic and political trends, and weaknesses in knowledge, skills and infrastructure. 38. The International Institute for Educational Planning has studied technical and vocational education in French-speaking Africa and a done similar study of English-speaking Africa and in Mozambique The main finding is that the systems need to evolve to strengthen linkages between training and employment. 39. The above World Bank, DFID and IIEP reviews look at skills training in a context of private sector development and the needs of the labour market, both formal and informal. The gap between education and training is recognised as a weakness. The studies do not tackle education from a human rights perspective. More needs to be 12
known about the potential of education and training programmes that take a more holistic look at the needs of young people. 40. Such as study has been carried out by UNICEF in Tanzania, looking at how to end the vicious circle of lack of education, of job opportunities and poverty. It is argued that there needs to be a deeper understanding of the quality of life as experienced by young people themselves. Second, access to quality education needs to be expanded. Third, the Government and its partners need to create conditions that enable young people to secure a decent standard of living. Finally, there needs to be greater space for young people s participation in society and in its key institutions. 41. The impact of the HIV/AIDS epidemic on education and the possibilities of using education to combat HIV/AIDS are a central issue in the international debate on education. The epidemic will have a negative impact on the possibility of achieving the Millennium Goals concerning education and gender equality. 42. Actions are needed to minimise the impact of the epidemic on education systems and on young people. UNDP divides the actions into: action for protecting educational achievements; action to mitigate the impact on labour productivity and supply; action to promote opportunities for women who are carrying the brunt of the burden of HIV/AIDS. 43. That education can provide a window of opportunity in the fight against HIV/AIDS is the theme of the World Bank report: Education and HIV/AIDS, A Window of Hope (2002). 44. There are already country responses that provide models for more general application, including skills-based health education, peer education, and support for orphans and out-of-school youth. In a programme supported by Sida in Tanzania, an NGO ties its HIV/ AIDS programme directly to skills training so that young people can secure their own livelihoods. Conclusions 45. Sida has been a flexible supporter of different types and levels of education in the partner countries but, above all, basic education has been the focus of Sida s Education Division, increasingly in SWAp like arrangements. Support to literacy and non-formal education programmes for adults have continued to be a priority. 46. Some input into the education and training of young people at postbasic level have been made by other Sida Sector Divisions but programmes targeting young school leavers are unusual. Where there is potential for reaching larger groups of young people, for example in agriculture extension programmes, young people have not been treated as a specific target group. 47. This review shows that Sida has few programmes directed towards young people who have entered the labour market with only a few years of basic education. Nor is there any significant support to 13
secondary education, academic or vocational, for primary school graduates who want to continue in education. With an increasing responsibility for their own and their family s survival. 48.In the short term many young people, and in some countries the majority of young people, will remain outside the formal education system. It is important for Sida to remain flexible and use a number of channels to reach out-of school youth, such as non-formal education programmes and skills training programmes funded directly or through other agencies. There could be increased synergy between programmes developed by different Sida departments in the same partner countries, within the framework of the national development priorities set by the partner countries. 49. Building on Sida policies, experience, and international experience of education in developing countries, the Sida position on support to post-basic education should be developed taking into account the following: an holistic view of the needs of the individual for education and training, the importance of education for human rights and democratic development, the societal needs for an educated labour force, the implementation of poverty reduction programmes in the partner countries, the opportunity provided by SWAps to bridge the gap between basic education support and support to higher education and research, the possibility to co-ordinate capacity building across the sectors supported by Sida in the partner countries, the advantages of cooperation with other bilateral and multilateral agencies in supporting education programmes, formal and non-formal, and capacity building in the partner countries, within the context of sector wide programmes, the need to tackle the spread of HIV/AIDS using education as a conduit for both prevention and mitigation of the impact on young people. Proposals Based on the above considerations, the following proposals are made: 1. Sida s Education policy takes a holistic view of education. Young people s education and training needs can be met within the framework of the policy and this can be done both within education programmes and within other sector programmes. 2. Post-basic education is not the monopoly of individual departments or ministries in the partner countries. The responsibility is often spread out over ministries for education, higher education, 14
children and youth, industry and labour. This provides multiple entry points for supporting young people s education and training. These should be utilised by Sida and the partner country in developing country strategies and implementing programmes which take into account the countries needs for an educated workforce and the individual needs for quality education and decent work. 3. Targeting young people should be considered particularly in countries where children and young people are in the majority and in countries hard-hit by the HIV/AIDS pandemic. All Sector Divisions within Sida have the possibility to reach out to young people particularly in the area of skills training. Young people are already a priority target group for Sida s Health Division, Culture and Media Division, the Division for Democratic Governance and the Division for Humanitarian Assistance. Much of this work is innovative, could be expanded, and the experiences to date can be a major contribution to the international debate on how to support young people through development cooperation. 4. Consideration should be given to establishing a Sida-wide group that promotes and develops the targeting of young people in Sidasupported programmes with a focus on education and training. The Education Division is the natural focal point within Sida for such a group within Sida. This group could include, or work closely with, representatives of Swedish NGOs that share the concern that young people should be a visible target group in Swedish development cooperation and be enabled to participate in education and training programmes. 5. The Swedish resource base for support to education and training in the partner countries should be strengthened. To participate pro-actively in the international debate on post-basic education, and to bring Swedish expertise into the development of Sida support to post basic education, Sida needs to have a solid resource base within Sweden. This resource base, particularly for skills training but also for general adult education, has declined over the last decade when the emphasis has been on basic education. The resource base needs revitalising and the Education Division should play the key role in this. Resource bases for all forms of post-basic education and non-formal education need to be reviewed and revitalised, for example for literacy education, compensatory education programmes for out-of-school children and young people, and inclusive education for young people with special learning needs. 6. The Education Division could strengthen some aspects of the work it is already doing, for example: In countries where Sida supports Education SWAps, Sida should encourage Ministries of Education to take a flexible approach to different levels and types of education within the SWAps, even when some education programmes are the responsibility of other ministries. 15
a part of Sida funding for education should continue to be allocated to non-formal education projects as the majority of young people in many of the partner countries will remain outside the formal education system for years to come, These funds could be allocated directly to the partner country or used in partnership with, or by silent partnership with, other development cooperation agencies, UN agencies or NGOs. Skills training should be a priority area for such partnerships. Swedish traditions of life-long learning and adult education including literacy should be built upon in non-formal education programmes supported by Sida. For the school to be a forum for learning democratic values the quality issues have to be tackled as a matter of urgency. Teacher training is an entry point for changing what goes on in the classroom. Sida has a good track record in supporting teacher education programmes and this area should continue to be prioritised either as a separate programme or, preferably, within SWAps. Young people with special learning needs need to be allocated funds either within SWAps or in special programmes. Swedish competence in this sub-sector should be used to promote the provision of education for children with special learning needs, and if necessary special funds should be set aside to meet their needs. 16
The Context of the Review Swedish development cooperation is currently the subject of a Swedish Parliamentary Commission, and Sida s strategy for poverty reduction is undergoing an internal review process. The poverty perspective is integral to Sida s development cooperation as is a human rights perspective. Both are emphasised in the preliminary report of the Parliamentary Commission. A striking feature of the report by the Parliamentary Commission is the way it puts the rights of the individual in focus: Every human being has the right to live in dignity. The Commission proposes that a human rights perspective should permeate Sweden s development cooperation: A rights based approach should underlie the broadened global development policy area and stresses that this policy must be combined with support for democratic processes. A rights based approach centres on the individual and makes plain the different needs of different people.. Human rights encompass most components of poverty in a broad sense of the word: a lack of opportunities, power and security. In the Sida draft Poverty Reduction Strategy, three strategic areas are focused upon in a section on bridging the divide within countries : education, access to information and protection against external shocks. It is noted that: The emergence of a global information society and of an information and knowledge based economy inevitably puts increased premium on education. Education is crucial not only for accessing information but also for turning information into knowledge. Adequate formal education, (which) more and more means secondary education, is an absolute prerequisite for escaping poverty, for upwards social and economic mobility and for benefiting from the opportunities offered by the ICT revolution. It is further noted that: Education, health care and protection against exploitation and abject deprivation are not only part and parcel of the universal rights of children but also essential to endow children with the necessary capabilities for a full and productive life as adults. The access of the poor to productive resources needs to be increased as for most people, own labour is by far the most important resource. Hence, generation of productive employment decent work deserves to play a key role in strategies for economic and social development. 17
The concern with education can be put into the perspective of Sweden s support to international commitments to fight poverty. The International Convention on Civil and Political Rights and the International Convention on Economic, Social and Cultural Rights (both 1966) include Economic Rights: Right to work and decent working conditions; Right to form and join trade unions and to strike; Right to food and to be free from hunger. Cultural rights include the right to education. More recently, the Millennium Development Goals (United Nations General Assembly, September 2000) include the achievement of universal primary education for both girls and boys by 2015, and the elimination of gender disparity in primary and secondary education by 2005 and on all levels by 2015. The 8 th goal, develop a global partnership for development, includes the sub goal of: develop and implement strategies for decent and productive work for youth. The Parliamentary Commission s emphasis on the individual puts into focus a dilemma that is particularly pertinent for Sida support to education and training. When are investments justified? When the individual wants it (as a human right) or when society needs it (development perspective). To some degree the two overlap when it comes to education and training. But what does emerge more strongly in a human rights perspective is that education and training is not just about an input into human resource development in the interests of national economic development. It is also about the individual as a whole, as a member of a family, community and society with a range of educational needs linked to these various roles. The demands for qualified labour per se cannot be ignored by the state: for economic development to take place, productivity needs to increase in traditional sectors such as agriculture. Modern agro-industry, manufacturing and service industries put quality of labour in focus rather than abundant cheap labour. In meeting the rights of the child to education, the state is at least in part meeting the demands of the economy for an educated labour force. The rights of children to education are enshrined in the Convention on the Rights of the Child, which came into force on 2 September 1990. It is stated in the Convention that State Parties shall make primary education compulsory and available free to all, and that State Parties shall encourage the development of different forms of secondary education including general and vocational education. State Parties shall also make higher education accessible to all on the basis of capacity by every appropriate means (Article 28 see Annex One). In many of the Sida partner countries, the State is unable to meet its obligations to provide primary education for all, and secondary education as circumstances allow. Sida s policy for sector programme support, which corresponds to Sector Wide Approaches (SWAp) is increasingly being applied in education programmes although the Sida support to higher education and research remains outside the ambit of the programmes. The SWAp mechanism allows flexibility for the allocation of financial resources within the context of common goals and a common policy framework for the whole sector. In a number of partner countries it is unlikely that the majority of young people will have access to formal schooling at post-basic 18
level in the foreseeable future. Therefore alternative forms of education also need to be supported outside the formal sector. There is still a large gap between government policies for education and their implementation. In many countries, the possibility of closing the gap is under threat from the impact of HIV/AIDS on the teaching corps, on education administrators and on the families of the pupils. The impact of HIV/AIDS on education, and the opportunities to use education to combat the epidemic, are discussed in this review. 19
1. The objectives of the review 1.1 Description of the problem Sida s overall objective for capacity development in partner countries is to create conditions for professional sustainability of institutions and organisations, including national systems of education, training and research (Sida, 2000). The present concentration of development cooperation to national systems of education, training and research is to basic education (Education Division UND) and higher education and research (Department for Research Cooperation, SAREC). Within other sectors supported by Sida, such as natural resources, health, and private sector development, capacity development is linked to specific projects, for example training provided by extension workers in rural development programmes. Sida gives substantial support for NGOs to education and training projects supported by Swedish non-governmental organisations. Education is also funded within humanitarian relief programmes. Over the years a number of strategic choices have been made which have led to resources from Sida being concentrated to basic education and to higher education and research. The decline in resources to post-basic education has occurred concurrently with an increase in the numbers of young people in the partner countries, both in absolute numbers and as a percentage of the total population. The majority of primary schools leavers in the poorest countries do not continue to secondary, higher or formal vocational training institutions. Access is restricted largely because the financial resources are not available for expanding access. Therefore in many countries basic education has become synonymous with primary education. Young people leaving the education system with only primary education have difficulty in accessing formal sector jobs: they work in traditional agriculture or in the informal sectors of the economy, or they are unemployed. They have few chances of being included in sector-related training programmes. An important sub-sector at post-basic level is skills training. However, skills training is not explicit in the International Development Targets set by OECD s Development Assistance Committee. Nor has skills development been a central issue in national Poverty Reduction Strategy Papers 20
which are key documents for debt relief and poverty reduction related loans from the World Bank and IMF. The review recognises that in most of the partner countries access to both education and the labour market is gender differentiated. Fewer girls than boys complete the primary cycle. Through secondary and tertiary education, percentage enrolments of girls and women decline steadily. Fewer young women than young men are enrolled in skills training programmes. The lack of equal opportunities for education put women in a weaker position than men in seeking work. This is exacerbated by labour market gender differentiation. 1.2 The objectives of the review The objective of the review is to develop a Sida position on support to post-basic education that is co-ordinated and coherent across the sectors. The review looks at the learning and training needs of young people from a human rights perspective, and at the societal needs for an educated labour force. This involves: Analysing (i) the education and training needs of the target group at the post-basic education level in Sida partner countries, and (ii) the education and training systems which could be addressing both individual needs and the societal level needs for an educated workforce. Reviewing Sida support to education and training systems including capacity development programmes integrated into specific sector programmes. Putting the Sida position on post-basic education into an international development perspective. On the basis of the review, proposals for a Sida approach to education and training at the post-basic education level are developed taking into account (i) the priorities of our partner countries, (ii) international development thinking on support to post-basic education and skills training, as well as (iii) Sida s policies for capacity development, education, and higher education and research, in the context of the overall goals for Swedish development cooperation. In terms of policy work, this review is complementary to: The Policy for Sida s Development Cooperation in the Education Sector (Education for All: a Human Right and Basic Need). April 2001. Sida s Policy for Research Cooperation. Sida s Policy for Capacity Development (November 2000) and the current work of the Capacity Development Project Group. Sida s Policy for Sector Programme Support and Provisional Guidelines. (February 2000) Sida s Policy for HIV/AIDS Investing in the Future Generation (March 1999) 21
the work currently in progress on developing a common approach within Sida to support to higher education. (see draft memo Riktlinjer för Högre Utbildning och Universitetsstöd, daterad 2002-02-20). The work currently in progress on a paper on Sida support to adult education This review draws upon the above documents and on the ongoing work by the Department for Democracy and Social Development (DESO), mapping out what is done for young people in the Department s programmes (DESO 2002). This review is also an input to the work of Sida s knowledge group. 1.3 The structure of the paper Basic education, post-basic education and the target group, young people, are defined in Section Two. Sida policies for support to education and training are outlined in Section Three. Human rights are important in Sweden s development cooperation and therefore the situation of young people in the partner countries is illustrated in Section 4.1 by examples from several country strategies. The current situation in postbasic education is considered in 4.2. What Sweden supports in specific country programmes is decided in dialogue with the partner countries whose priorities are increasingly set out in Poverty Reduction Strategy Papers. These are illustrated in Section 4.3. In Section Five, Sida support to post-basic education is summarised. Not all Sida support to education and training is managed by Sida. Sida makes grants to Swedish NGOs, many of which support education programmes in partner countries. There is also substantial Swedish contributions UN agencies, World Bank and bilateral agencies as described in Section 5.6. Neither Sida nor the partner countries set priorities in isolation. There are international trends in development cooperation. In education this has been particularly marked in the 1990s with the move from support to secondary education and vocational education and training, to support to basic education. Section Six summarises the international debate on support to post-basic education. In Section Seven, some conclusions regarding the current Sida support are made. In the final section, 8, there are recommendations for a more coherent Sida support to post-basic education in the partner countries. 22
2. Definitions 2.1 Basic education In the 1996 Education Division Policy, basic education is defined as follows: Basic education is understood by Sida to mean a set of knowledge, skills and attitudes necessary for participation in the cultural, economic, political and social life of communities. In the current policy for Sida s development cooperation in the education sector (2001), the definition of basic education is more specifically tied to the different forms of education: While primary school education is the core, basic education includes all age groups, and goes beyond conventional curricular and delivery systems, for example, pre-school, adult literacy, non-formal skills training for youth, compensatory post-primary programmes for school leavers. Age of the students is not used as a defining parameter for basic education and nor is the duration of formal basic education, as the standard normally applicable in the country in question will be adopted, i.e. primary education or whatever higher level of education is considered basic. 2.2 Post-basic education The term post-basic education is used in this review to refer to secondary education and skills training programmes for people who have completed basic education or need to complement inadequate basic education. Post basic education thus includes both academic education usually provided by secondary schools, and vocational education and training provided by a variety of institutions, public and private, including work-place based training for skills development, and compensatory non-formal education programmes. Higher education is not included in this definition. Sida support to higher education is being examined in another paper being prepared by Sida s Department for Research Cooperation together with Sida s Education Division. The contents of post-basic education are difficult to define given that in many of the partner countries, basic education does not live up to the standards set at the Jomtien conference, i.e. that it should include essen- 23
tial skills, knowledge and values needed for participation in society, including the labour market. Therefore the deficiencies of the basic level education have to be compensated for at post-basic level. The quality of education at both basic and post-basic levels is also a gender issue, given that poor quality education fails to address the needs of girl learners as evidenced by their higher dropout and failure rates. The situation of children with special learning needs is also largely ignored in the poorest countries. 2.3 The target group Young people The UN Convention on the Rights of the Child defines a child as a person up to 18 years of age. However, in many countries, children in their upper teens are not considered to be children, but young adults. This has had a negative effect on programmes for the upper age group as governments and agencies have concentrated on the needs of younger children. By default the rights of older children to education and training have been neglected. There are overlapping terms to describe the age group that could be the target for post-basic education, for example adolescents, teenagers, and youth. UNICEF defines those who are between 15 19 years as adolescents, and those between 15 24 years as youth, but then use the terms interchangeably. WHO uses the term adolescents for girls and boys between 10 and 19 years, youth for those between 15 24, and young people to include both. (DESO 2002). In many of the partner countries, the official age of entry to primary education is six or seven years, and the duration of basic education between 6 to 8 years. Therefore the youngest possible age for completing basic education is somewhere between 12 and 15 years. Because of late enrolments into the system, repetition, and periods away from school due to illness or family poverty, many students are well into their upper teens when they finish primary school. The age-range of the potential postbasic education group is therefore wide, from 12 years to early twenties. Taking the above into consideration, the target group for post-basic education is referred to in this review as young people, with the understanding that this group includes adolescent school leavers as well as young adults already in their late teens and early twenties. The review is confined to the needs of young people because of their importance in terms of sheer numbers in the partner countries, their exclusion from both education and decent work in many of the poorest countries, their vulnerability socially and healthwise, and the resulting critical situation they are in as they take on new roles as young adults responsible for themselves and their families. This marks them out from older adults already established in family and work roles. 24
3. Sida policies for support to education and training 3.1 Education Sida s overall education policy goal is to enhance the right to relevant education for all. The first SIDA Education Policy, 1972, took a basic needs approach and a human rights approach to education. This was the beginning of Sida s consistent bias towards basic education. Within this support there were elements of education with production or education for self-reliance in the various national programmes, for example the Brigades Programme in Botswana and Zimfep in Zimbabwe. There was also a separate policy for support to vocational education and training. From when SIDA was formed in 1965, the Vocational Education Section supported a school-based model of vocational education and training. On the basis of this model, vocational schools were established with SIDA support in Pakistan (East and West), Tunisia, and several countries in sub-saharan Africa. The SIDA Guidelines for Education Assistance of 1986 confirmed the Sida bias towards general education: The main emphasis of SIDA s assistance to the education sector should be, as hitherto, basic education. If a growing proportion of a country s population is given access to basic knowledge, the objectives of equality, democracy and growth will be promoted. Some other levels and types of education were also mentioned, in particular vocational training, educational planning, higher education and research (the latter to be undertaken in conjunction with SAREC, the Swedish Agency for Research Co-operation with Developing Countries). There was, however, a steady reduction in the 1980s of support to vocational and technical tertiary education. Little support was given to secondary education, partly because other donor agencies were very active at post-primary level. The 1990 Education for All Conference held in Jomtien, Thailand, influenced the next Sida education policy, the Policy for Sida Co-operation in Basic Education and Education Reform of 1996. The Jomtien Declaration on Basic Education reinforced both the growing orthodoxy of the best returns to investment being at basic level, and the human rights approach to education. The Jomtien Conference advocated universalisation of access, promotion of equity, focus on learning, broadening the means and scope of 25
basic education, and enhancing the environment for learning, and strengthening partnerships. There was an underlying assumption within Sida s Education Division that the focus should be on basic education, as advocated at Jomtien, because we had a long experience in this area. Although the same could have been argued for vocational education, it was not, perhaps because of a lack of confidence in the vocational schools approach that had dominated Sida support to the sub-sector. Direct Sida support to vocational training was virtually ended by the time the 1996 Sida policy was adopted. The current Sida policy: Education for All: A Human Right and a Basic Need Policy for Sida s Development Co-operation in the Education Sector, 2001, has reopened the door to possible support to vocational education. The new policy is anchored in the Framework for Action on Education for All adopted at the World Education Forum held in Dakar in April 2000. The six goals adopted at Dakar, and cited in the Sida policy document, includes the following: Ensuring that the learning needs of all young people and adults are met through equitable access to appropriate learning and life skills programmes. (Goal 3) In line with Dakar framework for action, the overall policy goal of Sida s co-operation in the education sector is stated as follows: To enhance the right to relevant education for all an education that empowers the poor and excluded parts of the population to participate as active and informed citizens in all aspects of development. The main means to achieve this will be through support to the implementation of partner countries own sector-wide education policies and development plans, the support being adapted to each country-specific context. In the 2001 policy, it is emphasised that working towards Sector Programme Support (SPS) the term used by Sida to describe support to processes towards sector-wide approaches is the main approach. There will often be a gradual shift from projects to programme support, but the dialogue leading to programme support concerns the entire sector. Even if basic education continues to be a Sida priority, the way is open to discuss and support secondary, vocational and non-formal education within the context of Sector Wide Approaches (SWAps). 3.2 Higher education and research The gradual shift from projects to programme support also applies to higher education. Most Sida support to higher education is managed by the research department, SAREC, and focuses on university support. Every country needs at least one research university where the link between research and higher education is vital for the production of new researchers and also for the quality of higher education. Research training is therefore one of the basic features of the co-operation. Support is also directed to reforms and strategic planning. Support to higher education currently exists mainly when it is encompassed by institutional support to universities with which Sweden has research co-operation programmes. There is also some support encompassed in sector programmes, for exam- 26